The Paradox of Representation: Examining the Social Stratification of India’s Federal Workforce

The Paradox of Representation: Examining the Social Stratification of India’s Federal Workforce

In January 2026, the Department of Personnel and Training (DoPT) unveiled its Annual Report for the fiscal year 2024–25, offering an unprecedented look into the demographic architecture of the Indian Central Government. As of January 1, 2024, the report accounts for 32.52 lakh employees across various Ministries and Departments, marking the first full-scale dataset released by the Union government since the 2018–19 period. Between 2019 and 2023, comprehensive reporting was hampered by systemic delays; the current report’s near-comprehensive nature finally allows for a robust assessment of social justice in public employment.

At the heart of this data lies the ongoing mission to fulfill the constitutional promises of Articles 15 and 16, which mandate equality of opportunity and permit special provisions for backward classes. While the report highlights areas of significant progress, particularly in the entry of Other Backward Classes (OBCs) into government service, it also exposes deep-seated structural issues specifically, the persistence of caste-linked occupational clustering and a persistent "glass ceiling" in the higher echelons of the bureaucracy.

Occupational Segregation: The Shadow of Traditional Hierarchies

One of the most striking revelations of the 2024–25 report is the concentration of marginalized communities in low-status support roles. In the category of Group C (Safai Karmacharis), which comprises sanitation workers and sweepers, a staggering 66% of the workforce belongs to the Scheduled Castes (SC), Scheduled Tribes (ST), or Other Backward Classes (OBC).

Critics and sociologists argue that this over-representation in sanitation reflects a "persistence of the past," where traditional caste-based duties are replicated within the modern administrative framework. Instead of reservation serving solely as a bridge to administrative leadership, for many in these groups, it appears to serve as a gateway to the same labor their ancestors performed for centuries. This occupational clustering highlights the urgent need for the "dignity of labor" through the mechanization of sanitation work and the removal of caste identity from these specific roles.

The Hierarchical "Pyramid of Privilege"

While numerical representation at the base of the government hierarchy is robust, the data reveals a sharp thinning of diversity as one moves up toward decision-making positions. This "pyramid of privilege" is most visible in Group A posts, the senior managerial and administrative cadres that direct national policy.

The disparity in Group A is particularly notable for the OBC category, which faces a deficit of nearly 8% compared to its mandated 27% quota. Government justifications for this shortfall often point to the absence of reservation in promotions for OBCs and the "late entry" phenomenon. Many reserved-category candidates join the service at a later age due to various socio-economic factors, meaning they often retire before reaching the top-most ranks of Secretary or Additional Secretary.

Statistical Trends: A Decade of Growth and Decline

Comparing the latest figures to the 2018–19 dataset reveals a dynamic shift in the social composition of the federal workforce. The most prominent trend is the sharp rise in OBC representation, which jumped from 21.57% to 26.32% overall. This indicates that the secondary waves of the Mandal Commission reforms are maturing, as more OBC candidates successfully navigate the recruitment process.

In contrast, SC representation saw a marginal decline, sliding from 17.49% to 16.84% over the same period. While still above the 15% mandated threshold in total numbers, this downward trend suggests potential stagnation in recruitment or a high rate of retirement among older SC cadres. ST representation remained relatively stable, moving slightly upward from 8.47% to 8.7%. However, these totals often mask the reality that these percentages are propped up by high numbers in Group C, while the Group A shortfall remains a persistent feature.

Critical Data Gaps and the EWS Paradox

A significant point of contention in the 2024–25 report is what it doesn't contain. Despite the Economically Weaker Section (EWS) reservation of 10% being in effect since 2019 via the 103rd Constitutional Amendment, the DoPT has failed to provide a comprehensive breakdown of EWS representation in this year's report.

This lack of transparency prevents an evidence-based assessment of how the EWS quota which is based on income rather than social backwardness is affecting the overall diversity of the workforce. Without EWS data, it is impossible to determine if the 10% quota is reaching the truly disadvantaged or if it is inadvertently narrowing the "General" pool in a way that shifts the overall balance of representation. Transparency is the bedrock of accountability, and the continued absence of this data remains a significant hurdle.

Systemic Challenges: From "Data Delays" to "Not Found Suitable"

The path toward equitable representation is blocked by several recurring administrative hurdles. Foremost among these is the inconsistent reporting by individual Ministries. Out of roughly 100 departments, only about 80 typically report their data on time, leading to "partial snapshots." This delay hinders the government’s ability to identify and fill "backlog vacancies" reserved seats that remain unfilled from previous recruitment cycles.

Another contentious issue is the frequent use of the "Not Found Suitable" (NFS) clause during interviews and high-level selections. Parliamentary committees have often scrutinized this clause, alleging that it is sometimes used subjectively to bypass reserved candidates in favor of the status quo. When coupled with the lack of promotion-based reservation for OBCs, the NFS clause acts as a functional barrier that prevents the top rungs of government from truly reflecting the diversity of India.

Way Forward: Toward Substantive Equality

To move from formal numerical representation to substantive equality, several critical interventions are required:

• Ensuring Vertical Mobility: Implementing career progression pathways for Group C workers, including technical training and internal departmental exams to allow a transition into clerical or supervisory roles.
• Mandatory Disclosure: The DoPT must standardize EWS data collection to allow for a holistic view of the "new" reservation landscape.
• Streamlining Recruitment: Addressing backlog vacancies through special recruitment drives to reach the 50% (plus 10% EWS) constitutional threshold at all levels.
• Mechanization: Reducing the human element in sanitation through technology to help break the historical link between caste and manual labor.

Conclusion: Deconstructing the "Glass Ceiling"

The DoPT's 2024–25 report reveals a "pyramid of privilege" where diversity is high at the base but thins significantly at the apex of power. While the overall increase in OBC representation is a positive indicator of Mandal-era reforms reaching fruition, the concentration of marginalized groups in sanitation work serves as a reminder of the long road toward achieving substantive equality. True social justice within the Indian bureaucracy will not be achieved merely by hitting a percentage target, but by ensuring that a citizen's starting point does not limit their potential to reach the highest offices of the land.